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Calendar No. 506. 

65th Congress, 1 SENATE. I Report 

M Session. J j No. 554. 


CHANGES OF DRAFT AGE. 


August 15, 1918.—Ordered to be printed. 


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Mr. Chamberlain, from the Committee on Military Affairs, 

submitted the following 


REPORT. 




[To accompany S. 4856.] 


The Committee on Military Affairs, to whom Avas referred the 
bill (S. 4856) to amend sections 2, 4, and 5 of an act entitled “An 
act to authorize the President to increase temporarily the Military 
Establishment of the United States, approved May 18, 1917, and for 
other purposes," report same back to the Senate with certain amend¬ 
ments with the recommendation that as amended the bill do pass. 
The bill , as amended by the committee, is as follows: 

Be it enacted by the Senate and House of Representatives of the United 
States of America in Congress assembled. That the second sentence of section 
two of the Act entitled “An Act to authorize the President to increase tem¬ 
porarily the Military Establishment of the United States,” approved May 
eighteen, nineteen hundred and seventeen, be, and hereby is, amended to read 
as follows: 

Such draft as herein provided shall be based upon liability to military service 
of all male citizens and male persons residing in the United States, not alien 
enemies, who have declared their intention to become citizens, between the 
ages of eighteen and forty-five, both inclusive, and shall take place and be 
maintained under such regulations as the President may prescribe, not incon¬ 
sistent with the terms of this Act: Provided, That the President may draft 
such persons liable to military service in such sequence of ages and at such 
time or times as he may prescribe: And provided further, That a citizen or 
subject of a country neutral in the present war who has declared his intention 
to become a citizen of the United States shall be relieved from liability to 
military service upon his making a declaration, in accordance with such regula¬ 
tions as the President may prescribe, withdrawing his intention to become a 
citizen of the United States, which shall operate and be held to cancel his 
declaration of intention to become an American citizen, and he shall forever 
be debarred from becoming a citizen of the United States. 

2. That the provision of section four of said act, “persons engaged in in¬ 
dustries, including agriculture, found to be necessary to the maintenance of 
the Military Establishment or the effective operation of the military forces or 









2 


CHANGES OF DRAFT AGE. 


maintenance of national interest during the emergency,” he, and hereby is, 
..uitx.ded to mukas follows: 

Persons engaged in industries, occupations, or employments, including agri¬ 
culture, found to be necessary to the maintenance of the Military Establish¬ 
ment or the effective operation of the military forces or the maintenance of 
national interest during the emergency: Provided, That when any person shall 
have been placed in a deferred or exempted class for any of the reasons in 
this paragraph set forth, he shall not be entitled to remain therein unless he 
shall in good faith continue, while physically able so to do, to work at and 
follow such occupation, employment, or business, and if he fails so to do he 
shall again become subject to the draft. 

The President shall make regulations for enforcing this provision. 

3. That section four of said act be amended by adding at the end thereof 
the following proviso: 

Provided, That nothing in this section contained shall prevent the President, 
if he deems it advisable, from appointing as a member of the local board any 
person residing outside the subdivision or area, but within the same State, in 
which such local board has jurisdiction, or from transferring a member of 
one local board to another local board outside the subdivision or area, but 
within the same State, in which such person resides. 

4. That section five of said act be, and hereby is, amended to read as follows: 

That all male persons between the ages of eighteen and forty-five, both 

inclusive, shall be subject to registration in accordance with regulations to be 
prescribed by the President, and upon proclamation by'the President or other 
public notice given by him or by his direction stating the time or times and 
place or places of any such registration, it shall be the duty of all persons of 
the designated ages, except officers and enlisted men of the Regular Army, the 
Navy, and the National Guard and Naval Militia while in the service of the 
United States, to present themselves for and submit to registration under the 
provisions of this act; and every such person shall be deemed to have notice of 
the requirements of this act upon the publication of any such proclamation or 
any such other public notice as aforesaid given by the President or by his 
direction; and any person who shall willfully fail or refuse to present himself 
for registration or to submit thereto as herein provided shall be guilty of a 
misdemeanor and shall, upon conviction in a district court of the United 
States having jurisdiction thereof, be punished by imprisonment for not more 
than one year and shall thereupon be duly registered: Provided, That in the 
call of the docket precedence shall be given, in courts trying the same, to the 
trial of criminal proceedings under this act: Provided further, That persons 
shall be subject to registration as herein provided who shall have attained 
their eighteenth birthday and who shall not have attained their forty-sixth 
birthday on or before the day set for the registration in any such proclama¬ 
tion by the President or any such other public notice given by him or by his 
direction, and all persons so registered shall be and remain subject to draft 
into the forces hereby authorized unless exempted or excused therefrom as in 
this act provided: Provided further, That the President may at such intervals 
as he may desire from time to time require all male persons who have attained 
the age of eighteen years since the last preceding date of registration and on 
or before the next date set for registration by proclamation by the President, 
except such persons as are exempt from registration hereunder, to register in 
the same manner and subject to the same requirements and liabilities as those 
previously registered under the terms hereof: And provided further, That in 
the case of temporary absence from actual place of legal residence of any 
person liable to registration as provided herein,, such registration may be made 
by mail under regulations to be prescribed by the President. 

5. The wife of a soldier or sailor serving in the present war shall not be dis¬ 
qualified for any position under the Government because she is a married 
woman. 

G. Soldiers and sailors, regardless of age, shall, when they are accepted as 
volunteers or when they shall have been drafted, be eligible to receive commis¬ 
sions in either the Army or Navy. They shall likewise be eligible to admission 
to officers’ schools under such rules and regulations as may be adopted for 
entrance to such schools, but shall not be barred from or discriminated against 
on account of age. 

7. Any person under the age of twenty-one who shall have been accepted as a 
volunteer or who shall have been drafted and served in the Army or Navy shall 
be entitled, at the conclusion of the present war, to receive an education at the 


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t K , CHANGES OF DRAFT AGE. 3 

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expense Of the United States Government at approved educational institutions, 
lhe period of such education shall be equivalent in point of time to the period 
)> him served in the Army and Navy, but shall not exceed two years. Applica¬ 
tion for such educational privilege shall be made within six months after dis¬ 
charge, and the applicant shall promptly begin his studies after his application 
shall have been approved. 

Rules and regulations for carrying out this provision shall be promulgated 
by the President. 

I he main purpose of the foregoing bill is to change the present 
draft ages now established at 21 to 31 years, both inclusive, to 18 and 
45, both inclusive. This is the purpose of section 1 of the bill. 

The other changes in the present law are not so fundamental and 
are really intended to make the present law somewhat more flexible 
and easier of administration than at present. 

As to the necessity of changing the draft ages, attention is called 
to brief excerpts from the testimony of Hon. Newton D. Baker, Secre¬ 
tary of War, Gen. Peyton C. March, Chief of Staff, and to a memo¬ 
randum addressed to the Chief of Staff by the Provost Marshal Gen¬ 
eral, E. H. Crowder, under date of July 27,1918, with exhibits thereto 
attached. These taken together, in the opinion of the committee, 
warrant the speedy enactment of the bill as it is reported to the 
Senate. 

The Secretary of War appeared in person before the committee and 
testified, amongst other things, as follows: 

Secretary of War Baker. The need for the increase in the age limits is 
directly the outcome of the determination on the part of the War Department 
to speed up and also to increase in size the military program. 

After the recess of Congress, the study of the situation went on, and a few 
days ago it became clear to us that the 80-division program was perhaps the 
maximum which we could possibly hope to accomplish, and that to accomplish 
that it would be necessary to change the age limits from the present limits to 
18 to 45. 

I asked the Surgeon General for a formal opinion as to the changes he would 
recommend. In the light of the experience of other countries and our own 
experience, the Surgeon General independently came out with the suggestion 
of 18 to 45, so that the Surgeon General’s opinion sustains that arrived at by the 
General Staff. 

The bill as it is written meets with my entire approval. 

Question (by Senator Johnson). I find in talking to Members of Congress a 
decided reluctance to decrease the draft age to 18. I confess to a similar re¬ 
luctance. I think, however, that those with whom I have talked—and I know 
this is my personal attitude—are all willing to do it if the military necessities 
and the exigencies demand and require it. As I understand it, that is the 
situation? 

Secretary Baker. That is my belief about it. 

Senator Johnson. So, in order to carry out the purposes for which we have 
entered this war, successfully to prosecute it, this particular measure you deem 
essential? 

Secretary Baker. I believe that to be the fact. My own judgment about it 
originally was that 19 should be the minimum, and I came to the 18 minimum 
only after very thorough study of the situation, and with some reluctance, but 
finally believing it to be necessary to secure the appropriate number of men. 

The President’s policy is that the United States will concentrate its military 
efforts on the western front in France, including the Italian frontier as a part of 
the western front. The theory of the fighting in the future is that we must force 
the issue and win it on the western front. 


4 


CHANGES OF DEAFT AGE. 


The Chief of Staff likewise appeared in person before the com¬ 
mittee and testified with reference to the change in the draft ages as 
follows: 

Gen. Peyton C. March. The United States Government has been asked by her 
allies to embark upon a program so large that it was necessary very carefully 
to ascertain whether we could go through with it or not, and one of the features, 
of this enlarged program was providing men. The desire of the administra¬ 
tion is to establish limits, both maximum and minimum, which will accomplish 
this program and at the same time disorganize the industries of the country as 
little as possible. The policy of the War Department is to put the maximum 
number of men in France with the idea of shortening the war. We found from 
the figures furnished by the Provost Marshal General that we could embark 
on a program of 80 divisions in France by June 30, 1919, with 18 divisions at 
home. These divisions consist of, roughly, 40,000 men to a division. After 
prolonged study of the available man power of the United States, the Provost 
Marshal General showed that it was necessary to drop to 18 years of age and 
go to 45 in order to get the men to carry it through. All of the men obtained 
under the proposed change in the draft law—approximately 2,300,000—we ex¬ 
pect to have in France by June 30, 1919. 

Question (by Senator Reed). As a matter of fact, is it not your opinion that 
it is better for the country, better for the Army, better for the service, to call 
out these younger classes—that is, the men 18, 19, and 20 years of age—than it 
is to call out the men 32 and up? Is not that your personal opinion? 

Gen. March. My opinion is unqualifiedly in favor of the young man. 

The young men between 18 and 20 are usually not married; they have not 
settled down in life; they have not any encumbrances; and they are better off 
physically. 

The President has finally announced that the American military policy from 
this time on is centered on the western front and we have declined to be 
diverted from that one thing. The War Department has now adopted this as 
a policy, and it is the policy of the United States that the military program is 
to be centered in France. 

If the ages are changed to 18 to 45, the system of volunteer enlistments in 
the United States Army disappears. 

The purpose of America is to furnish enough man power to whip the Germans 
from now on. The only way that Germany can be whipped is by America 
going into this thing with her whole strength. 

Question (by Senator KirbyQ. Then America has got to put enough men over 
there to whip Germany? 

Gen. March. That is it in a nutshell. 

The authority which was granted the President in this bill gives him the 
power to call out classes, but does not make it mandatory. 

It is up to us to win the war, and we can win it. How long it will take will 
depend exactly upon what we do. If we drag along with this thing and put a 
small force over there, we will be playing Germany’s game. It is my belief that 
with an American army of 4,000,000 men in France under one commander in 
chief we can go through the German line wherever we please. 

Question (by the Chairman). In order to carry out this program you must 
have this law? 

Gen. March. Yes. This law will let us lean on class 1 until June 30 of next 
year. 

We reached the conclusion that the enlarged program was necessary on the 
30th day of July. 

The memorandum of the Provost Marshal General, forwarded by 
him to the Chief of Staff with an intimate and careful study of the 
man power of the United States between the ages of 18 and 45, is as 
follows: 

War Department, 

Office of the Provost Marshal General, 

Washington, July 27, 1918 . 

From : The Provost Marshal General. 

To: Chief of Staff, War Department, Washington, D. C. 

Subject: Changes of draft age. 

1. Pursuant to your memorandum of July 24, transmitting a copy (secret) of 
the approved military program for 1918-19, and calling for the draft of a pro- 


CHANGES OF DRAFT AGE. 


5 


posed bill lowering the draft age to 19 and raising it to 40, I transmit herewith 
estimates of the effectives obtainable by the enlargement of the draft ages in the 
shape of three studies covering age groups 32-40 combined with 19-20, 32-45 
combined with 19-20, and 32-45 combined with 18-20, and showing the esti¬ 
mated effectives for each combination. 

2. These figures were made by a careful calculation in this office, checking the 
calculations at various points with experience in the several items represented; 
the basic figures, viz, the total males of the respective age groups, were ascer¬ 
tained by comparison of reliable insurance actuarial figures with census tables 
projected to date. 

This explanation is made because the totals shown are considerably below 
what might have been supposed to be the ample size of the reservoir in the 
higher ages. The combination ages 32-40 and 19-20 (see study No. 1) desig¬ 
nated in your memorandum would yield only a little over a million and a 
half men (or half a million less than the total amount called for by the pro¬ 
gram for the nine months, October, 1918-June, 1919). By including age 45 
at the top, the second combination (see study No. 2) would yield only a 
million and three-quarters effectives. By taking the extreme step and adding 
age IS at the bottom and including age 45 at the top (see study No. 3) some¬ 
thing over two million and one-quarter effectives would be obtained. 

3. This seems to indicate that the bill as drafted should at least provide 
authority to call into service the extreme age of 45 at the top and 18 at the 
bottom; and it is accordingly recommended that the draft of a bill be pre¬ 
pared with those ages as the limits. 

4. Furthermore, the authority to draw upon this new reservoir must be 
obtained immediately. The estimated number of Class I men under the present 
ages (and including the class of 1918, age 21, that has been registered under 
the President’s proclamation) will be only about 100.000 men (and may fall 
below that figure) on'September 1, 1918, after filling the calls indicated for 
July and August,.and making deductions for the unexpected heavy losses due 
to a rush in June and July to the Navy, Marine Corps, and Emergency Fleet. 

5. September call: The first question which presents itself is the very urgent 
one, How to meet the September call for 200,000 men with considerably less 
than that number in Class I to be drawn upon? There is only one way I can see 
for accomplishing this, and that is to provide for weekly registration of men 
becoming 21 since last registration day, June 5, 1918. We could hold such regis¬ 
tration, after proper proclamation by the President and upon a bulletin order 
to boards, designating Monday of each week as registration day, and requiring 
the necessary personnel to assemble at the headquarters of local boards on that 
day to effect the registration. The first registration day would be a heavy one, 
requiring, perhaps, special personnel, but the subsequent weekly registration 
days should be handled with greater ease. In this way we could hope to get, 
under a rush procedure, approximately 80,000 men available for the September 
call, which, added to those remaining in Class I, would give a total barely suffi¬ 
cient to fill the September call. 

6. We must exclude, of course, from consideration in filling the September 
quota, registrants who become liable to our draft under the British and Canadian 
treaty, as it is not practicable to have a registration of these men until August 
29, 30 days after the ratification of the treaty; and it is not until 30 days 
thereafter that their right to elect to service with the British and Canadian con¬ 
tingents ceases. 

7. Subsequent calls: The second and more difficult question is, How can we 
supply, on time, the 150,000 men required for each of the succeeding months of 
October, November, and December? The British-Canadian treaty would help 
out to the extent—it is estimated—of about 50,000 men, which is not even the 
conventional “ drop in the bucket.” 

The House reconvenes on August 19 and the Senate on August 26. How long a 
period will be consumed in the discussion and enactment of legislation authoriz¬ 
ing the extension of the draft ages and in what form such legislation will be 
enacted it is difficult to anticipate. And yet we must anticipate it if we 
are to establish as expeditious procedure under it which will produce on time 
the quotas for the months above stated. If we could assume that the law would 
be enacted in the remaining days of August, we would have a basis of calculating 
the results to be obtained under it. As I stated to the Senate Military Committee 


6 


CHANGES OF DRAFT AGE. 


at its last hearing, a minimum period of 00 clays is necessary to enroll and classify 
all the men registered in the additional classes suggested. We can not therefore 
wait for the completion of Class I but must take men irrespective of their order 
numbers as fast as they find their way into Class I. 

8. I suggest for discussion with the Military Committees of the two Houses 
the tentative form of bill hereto attached, to the end that we may obtain assur¬ 
ances that the bill will pass in such a form as will permit me to proceed now 
with the printing of the large number of forms, including the questionnaire, 
necessary in connection with the additional registration. The Printing Office 
contemplates a period of 30 days for the printing of the forms, so it is neces¬ 
sary to move with great promptness. Of course, the distribution of the forms 
can' go on during the period of printing, with the assurance that they will not 
be invalidated by changes in the legislation. Perhaps, also, we could receive 
assurances that the registration could be enacted by the House in the period 
following its reconvening, so that it could be taken up promptly by the Senate 
on August 26 and passed there. This would enable us to contemplate September 
5 as a national registration day, and the machinery of the selective draft oper¬ 
ating very soon thereafter in grinding out a Class I available for filling October, 
November, and December contingents. 

E. H. Crowder, 
Provost Marshal General . 

Estimate of Effectives Obtainable by Enlargements of Draft Ages. 


SUMMARY OF STUDIES 1, 2, AND 3. 

Estimated numbers of effectives for each age group. 


I. Ages 32-40 

II. Ages 32-45. 

III. Ages 19-20. 

IV. Ages 18-20 


448, 086 
601, 236 
1,121, 634 
1, 797, 609 


Numbers for combinations of age groups. 


By combining ages 32-40 and 19-20: 

Ages 32-40_ 448, 086' 

Ages 19-20_1,121,634 


Study No. 1. 


Total_ 1, 569, 720. 

By combining ages 32-45 and 19-20: 

Ages 32-45_ 601, 236' 

Ages 19-20_1,121,634 


Study No. 2. 


Total_ 1,722, 870 J 

By combining ages 32-45 and 18-20: 

Ages 32-45_ 601, 236' 

Ages 18-20- L707,809 [ study No . 3 _ 


Total- 2,398,845 


STUDY NO. 1. 


Ages 32—10 (inclusive)_ 448,086 

Ages 19-20 (inclusive)_1,121,634 

Combined ages- 1,569,720 

























CHANGES OF DRAFT AGE. 


7 


Ages 32 to .',0. 


1. Total males. 

2. Less married (deferred)....!!!! 

3. Less deferred solely for indus¬ 

try and agriculture. 

4. Less other deferments. 

5. Less delinquents. 


5,311,952 

278,421 

139,210 

208,815 


6,900,532 


5,938,398 


Source of figures. 

1. Insurance tables. 

2. Insurance tables. 

3. 4 per cent of line 1. 

4. 2 per cent of line 1. 

5. 3 percent of line 1. 


6. Remainder (gross Class I) 

7. Less enlistments. 

8. Less aliens. 

9. Less Emergency Fleet_ 


150,000 

91,992 

50,000 


1,022,134 


291,992 


10. Remainder. 

11. Less physical rejects.." ” ’ ... 

(a) Groups B, C. 73,6i4 

(b) Group D. 219,042 


730,142 
292,056 


12. Net effectives 


448,086 


7. Special estimate. 

8. 9 per cent of line 6. 

9. Special estimate. 


(a) 10 per cent of line 10. 

(b) 30 per cent of line 10. 


EXPLANATION. 

1. Line 1 is taken from Prudential insurance-actuarial tables of July, 1918, 
compared with census tables projected in this office. The actuarial tables are 
brought down to date by the actuaries, and the census tables thus brought down 
at the bureau are not yet available. 

2. Line 2 is taken from same source as line 1. 

3. Line 3 is taken from industrial index ledger sheets for occupational 
registrants. The ratios there shown are: Class I equals 31 per cent; Classes 

11 to IV, deferred for industry and agriculture only equal 4 per cent. Other 
deferred classes equal 64 per cent. 

The percentage here taken is the same as for ages 21-30 classification. 
This is too large, in that many more such men in ages 32-40 would get their 
exemption on dependency grounds, without invoking industrial or agricultural 
necessity. But it is too small, in that a larger proportion of men in ages 
30-40 would be entitled to such deferment. Hence, these two differences may 
be estimated to set off each other. 

4. Line 4 represents the corresponding figure for the 1917 draft. These are 
too low, if anything, as the numbers of State officials, etc., increase in the 
higher ages. 

5. Line 5 is taken from reports in this office on delinquents, figuring 3.9 per 
cent of total registration. This would be too high, because the total delin¬ 
quents include at least some portion of the marrieds; hence 3 per cent is a 
safer figure. 

7. Line 7 is thus figured: Total enlistments (Army and Navy) to date, 
1,400,000; of which those above 30 are estimated at 10 per cent, or 140,000; 
of these, 120,000 may be estimated to be within ages 32-40; deduct 20,000 
marrieds, leaving 100,000 now enlisted; add 50,000 more probable enlistments 
before liability accrues in the new draft, 150,000. 

8. Line 8 is found thus; In the first registration 13 per cent were aliens; and 
the census report shows that the percentage of aliens’ ages 20-30 and 30-40 
or 45 is not substantially different. But many aliens have left the country and 

12 per cent is a safer figure. Of these, one-quarter are subjects of Great Brit¬ 
ain and Italy, who will presumably become liable and largely available; hence 
the deduction should be corrected to 9 per cent. This might seem too large, 
by a considerable factor, because in the 1917 draft only 50 per cent of called 
aliens obtained exemption on that ground, another 33 per cent obtaining it on 
other grounds, while 17 per cent of all aliens were certified for service; this 
would seem to show that in any given number of aliens the net number to be 
deducted on that ground is nearer to 50 per cent. But as the 33 per cent who 
were exempted on other grounds are already .included under the deferments 
already deducted, and as the 17 per cent volunteers are likely not to reappear 
(partly because of the Slavic and Polish Legions, etc.), there should be no 
reduction of the 9 per cent, which is the figure here taken on line 7. 

Declarants are not deducted ; the neutrals being a negligible amount. 

9. Line 9 is based on recent reports in this office. 

11. Line 11 (a) is based on the returns of classification of 1918 showing 10 
per cent. 




























8 


CHANQES OF DRAFT AGE. 


Line 11 (b) is based on similar figures, which show not quite 20 per cent, in¬ 
cluding camp rejections. To this must be added 10 per cent for ages 32-40, 
according to advices from the Surgeon General’s office. This gives 30 per cent 
in all. 

Ages 19 and 20. 


1. Total males. 

2. Less married (deferred). 

3. Less deferred solely for industry 

or agriculture. 

4. Less other deferments. 

5. Less delinquents. 


163,812 
10,532 

2,106 
63,191 


2,106,386 


239,641 


6. Remainder ( = gross Class I) 

7. Less enlistments... 

8. Less aliens. 

9. Less Emergency Fleet. 


207,777 
56,634 
0 


1,866, 745 

264,411 


10. Remainder. 

11. Less physical rejects. 

(a) Groups B, C. 160,233 

(b) Group D. 320, 466 


12. Net effectives. 


Source of figures. 

1. Insurance tables. 

2. Insurance tables. 

3. i of 1 per cent of line 1. 

4. T V of 1 per cent of line 1. 

5. 3 per cent of line 1. 


7. Special estimate. 

8. 3 per cent of line 6. 

9. Not allowed. 


1,602,334 
480, 700 

(a) 10 per cent of line 10. 

(b) 20 per cent of line 10. 


1,121,634 


EXPLANATION. 

Lines 1 and 2 are taken from the same tables as for ages 32 to 40. 

Line 3 obviously here can not use the same 4 per cent as for ages 21 to 30; 
the ratio one-half of 1 per cent is here taken. 

Line 4 similarly is taken at a negligible figure of one-tentli of 1 per cent. 

Line 5 is reckoned as for ages 32 to 40. 

Line 7 is based upon reports of July 26, 1918, from The Adjutant General’s 
office, as set forth later in study No. 3. 

Line 8 is based upon census figures showing that the numbers of aliens of 
ages 15 to 19 are less than one-lialf the number for the next five-year period, 
while the native born are 10 per cent to 20 per cent more numerous than in the 
higher-age period. Thus the 9 per cent for ages 21 to 30 should here be reduced 
to 3 per cent. 

Line 9. Emergency fleet withdrawals for these age years should not be 
allowed. 

Line 11 is based on the per cent for ages 21-30. Three officers of the Surgeon 
General’s office agree in believing that the ages 19-20 or 18-20 do not permit 
of any lower percentage than for ages 21-30. 

STUDY NO. 2. 


Ages 32-45 (inclusive)_ 601,236 

Ages 19-20 (inclusive)_1,121,634 

Combined ages_ 1. 722, 870 


Ages 32 to J/-5. 


1. Total males. 


10, 02S, 973 


Sources of figures. 

1. Insurance tables. 

2. Less married (deferred). 

7, 734,482 


2. Insurance tables. 

3. Less deferred solely for industry 

and agriculture. 

4. Less other deferments. 

401,159 

200,579 



3. 4 per cent of line 1. 

4. 2 per cent of line 1. 

5. 3 per cent of line 1. 

5. Less delinquents. 

300' 869 




8,637,089 






6. Remainder (=gross Class I)_ 


1,391,884 



7. Less enlistments. 

170,000 


7. Special estimate. 

8. 9 per cent of line 6. 

9. Special estimate. 

8. Less aliens. 

125,270 



9. Less Emergency Fleet. 

60; 000 




355,270 






10. Remainder. 



1,036,614 
435,3 i 8 


11. Less physical rejects. 




(a) Groups *B, C. 

103,661 


(a) 10 per cent of line 10. 

(b) 32 per cent of line 10. 

(b) Group D. 

331,716 






12. Net effectives.... 



601,236 
































































CHANGES OF DRAFT AGE. 


9 


EXPLANATION. 

Lines 1 to 6 are reckoned as for ages 32 to 40 in study No. 1. 

Line 7 is thus reckoned: Enlistments above age 30 equals 140,000; deduct 
30,000 married, leaving 110,000; add 60,000 more probable anticipatory enlist¬ 
ments, making 170,000 in all. 

Line 8 is reckoned as for ages 32 to 40 in study No. 1. 

Line 9 is based on reports in this office. 

Line 11 is reckoned as for ages 32 to 40, but adding 5 per cent more for ages 
40 to 45 (as recommended by the Surgeon General’s office), making 15 per cent, 
or an average of 12 per cent added for 32 to 45; or 32 per cent in all. 

Ages 19 and 20. 






Source of figures. 

1. Total males. 


2,106,386 


1. Insurance tables. 

2. Insurance tables. 

3. 1 of 1 per cent of line 1. 

4. of 1 per cent of line 1. 

5. 3 per cent of line 1. 

2. Less married (deferred). 

163,812 
10,532 

2,106 
63,191 


3. Less deferred solely for indus¬ 

try or agriculture. 

4. Less other deferments. 



5. Less delinquents. 

239,641 




6. Remainder (=gross class 1)_ 


1,866,745 



7. Less enlistments. 

207,777 
56,634 

0 


7. Special estimate. 

8. 3 per cent of line 6. 

9. Not allowed. 

8. Less aliens. 



9. Less Emergency Fleet. 

264,411 




10. Remainder... 



1,602,334 
480,700 


11. Less physical rej ects. 




(a) Groups B, C. 

160,233 
320,466 


(a) 10 per cent of line 10. 

(b) 20 per cent of line 10. 

(b) Group D. 






12. Net effectives. 



1,121,634 







EXPLANATION. 

Lines 1 and 2 are taken from the same tables as for ages 32 to 40. 

Line 3 obviously here can not use the same 4 per cent as for ages 21 to 30; 
the ratio one-half of 1 per cent is here taken. 

Line 4 similarly is taken at a negligible figure of one-tenth of 1 per cent. 

Line 5 is reckoned as for ages 32 to 40. 

Line 7 is based upon reports of July 26, 1918, from The Adjutant General’s 
office, as set forth later, in study No. 3. 

Line 8 is based upon census figures showing that the numbers of aliens of 
ages 15 to 19 are less than one-half the number for the next five-year period, 
while the native-born are 10 per cent to 20 per cent more numerous than in the 
higher-age period. Thus the 9 per cent for ages 21 to 30 should here be reduced 
to 3 per cent. 

Line 9. Emergency Fleet withdrawals for these age years should not be 
allowed. 

Line 11 is based on the per cent for ages 21-30. Three officers of the 
Surgeon General’s office agree in believing that the ages 19-20 do not permit of 
any lower percentage than for ages 21-30. 

STUDY NO. 3. 


Ages 32-45 (inclusive)--- 601,236 

Ages 18-20 (inclusive)_ 1,797,609 

Combined ages_ 2, 398,845 




























10 


CHANGES OF DEAFT AGE. 


Ages 32 to 1^5. 







Sources of figures. 

1. Total males. 


10,028,973 


1. 

Insurance tables. 

2. Less married (deferred). 

7, 734,482 


2. 

Insurance tables. 

3. Less deferred solely for industry 

401,159 



3. 

4 per cent of line 1. 

and agriculture. 






4. Less other deferments. 

200,579 



4. 

2 per cent of line 1. 

5. Less delinquents. 

300, S69 



5. 

3 per cent of line 1. 



8,637,089 




6. Remainder ( — gross Class I)_ 


1,391,884 




7. Less enlistments. 

170,000 



7. 

Special estimate. 

8. Less aliens. 

125,270 



8. 

9 per cent of line 6. 

9. Less Emergency Fleet. 

60,000 



9. 

Special estimate. 



355,270 




10. Remainder. 



1,036,614. 



11. Less physical rejects. 



435,378 



(a) “Groups'll, C. 

103,661 


(a) 10 per cent of line 10. 

(b) Group D. 

331,716 



(b) 32 per cent of line 10. 

12. Net effectives. 



601,236 




EXPLANATION. 


Lines 1 to 6 are reckoned as for ages 32 to 40 in study No. 1. 

Line 7 is thus reckoned: Enlistments above age 30 equals 140.000; deduct 
30,000 married, leaving 110,000; add 60,000 more probable anticipatory enlist¬ 
ments, making 170,000 in all. 

Line 8 is reckoned as for ages 32 to 40 in study No. 1. 

Line 9 is based on reports in this office. 

Line 11 is reckoned as for ages 32 to 40, but adding 5 per cent more for 
ages 40 to 45 (as recommended by the Surgeon General’s office), making 15 
per cent; or an average of 12 per cent added for 32 to 45, or 32 per cent in all. 

Ages 18 to 22. 






Source of figures. 

1. Total males. 


3,171,671 


1. Insurance tables. 

2. Less married (deferred).. 

158,185 



2. Insurance tables. 

3. Less deferred solely for industry 

15,858 



3. i of 1 per cent of line 1. 

and agriculture. 





4. Less other deferments. 

3,171 



4. 1/10 of 1 per cent of line 1. 

5. Less delinquents. 

95,150 

272,354 


5. 3 per cent of line 1. 

6. Remainder (=Gross Class I)_ 


2,899,317 



7. Less enlistments... 

244,326 


7. Special estimate. 

8. Less aliens. 

86,979 



8. 3 per cent of line 6. 

9. Less Emergency Fleet. 

0 

331,305 


9. Not allowed. 

10. Remainder. 



2,568,012 


11. Less physical rejects. 



'770^403 


(a) Groups B, C. 

256,801 



(a) 10 per cent of line 10. 

(ft) Group D. 

513,602 



(ft) 20 per cent of line 10. 

12. Net effectives. 



1,797,609 



EXPLANATION. 

Lines 1 to 5, 8, and 11 are obtained as for ages 19 to 20 in study No. 1. 

Line 9, Emergency Fleet withdrawals for these ages should not be allowed. 

Line 11 is reckoned as for ages 19 to 20 in study No. 1. 

Line 7 is based on The Adjutant General’s office estimates of July 26, 1918, as 
follows: 

1. On account of the present arrangement of records in the several offices 
it would require the services of some hundred clerks for months to obtain an 
accurate count of the number of men in the military service of the United States 
between the ages of IS and 20. An accurate count can only be had from a study 
of all enlistment papers in The Adjutant General’s office, the Navy Depart- 

















































CHANGES OF DRAFT AGE. 


11 


ment, and the Marine Corps. An estimate may be made from the actual number 
of enlistments since January 1. 1917, and the number in this age group in 
service at the present time is 244,326, of which number 36,549 are estimated to be 
under 19 and 207,777 are estimated to be of ages 19 to 20. 

2. This estimate has been arrived at in the following manner: 

(a) Enlisted men in the Regular Army and National Guard between 18 
and 20. 

The chief clerk of the recruiting department of The Adjutant General’s 
office makes the statement that “ due to the Selective Service Regulations prac¬ 
tically all enlistments in the Regular Army and National Guard since January 
1, 1918, represent men outside of the draft age, and of these about 70 per cent 
are under the age.” This estimate was verified by his assistant, who thought 
that possibly the reenlistments of older men might place as many as 75 per cent 
below the draft age. Another assistant in the department at First and B 
Streets estimated between 60 and 70 per cent, so that the average estimate of 70 
per cent had been used in this computation. An actual count of current enlist¬ 
ment papers selected at random revealed 80 out of 115 to be below the draft age. 
The total number of enlistments in the Regular Army during this period was 
113,794, which figure it is estimated is about 90 per cent of the combined figures 
for the Regular Army and National Guard. Therefore the total enlistments in 
the above would be approximately 126,436. But this figure includes men regis¬ 
tered on June 5, 1918. the percentage of which is estimated to be 45 per cent. 
The net figure, then, for the age group 18-20 is estimated at 69,540. Of these, 

15 per cent, or 10,430, are under the age of 19. For the years 1916 and 1917 an 
average estimate by the same experts divides the enlistments into three age ' 
groups by percentages as follows: 


Per cent. 

Under 21_ 27 

21-30_ 57 

Over 30_ 16 


On this basis of the 235,000 enlistments for 1916-17. exclusive of the National 
Guard, 63.450 would be between 18 and 20. Assuming that as many of these 
attained the age of 21 by June 5, 1918. as were enlisted during 1916 under 
age, it is estimated that this figure 63,450 would be approximately the number 
of men now in the service enlisted prior to January 1, 1918. No figures for the 
National Guard are available. Hence the total strength of the Regular Army 
between 18 and 20 is approximated at 133,000 and under 19 at 19.950. 

(b) Navy: The approximate strength of the Navy and Naval Reserve forces 
at this time is 400,000 enlisted men, or a little over about half in each. Of 
the 200,000 men in the Navy proper, very close to 50 per cent are between the 
ages 21-30. Of the 100,000 men outside of these ages it is estimated that 75 
per cent are under and 25 per cent over. In the Navy, then, 75,000 are to-day 
under 21. Of the 200.000 in the Naval Reserves, between 80 and 88 per cent 
are within the ages 21-30. Assuming 170,000 to be a fair figure, 30.000 remain, 
which are equally divided into two age groups—those over 30 and those under 
21. Hence the number of men in the naval forces under 21 is approximated 
at 97,500. Of these it is estimated that 15 per cent, or 14,625, are under the 
age of 19. The above estimates are furnished by the clerk of the enlisted per¬ 
sonnel of the Navy. 

(c) Marine Corps: Total minors enlisted since April 1, 1917, 13,826, or, 
applying 15 per cent, 1,974 are under 19. 

3. Summarized estimate: 



18-20. 

Under 19. 

19 and 20. 


133,000 
97,500 
13,826 

19,950 

14,625 

1,974 

113,050 
82,875 
11,852 


Wa r 'np Corps ... 

Total . 

244,326 

36,549 

207,777 





















12 


CHANGES OF DRAFT AGE. 


MEMORANDUM FOR THE SECRETARY OF WAR. 

July 29, 1918. 

Subject: Proposed amendments to selective-service act approved May 18, 1917. 

1. The first amendment brings all male citizens and male persons residing 
in the United States, not alien enemies, who have declared their intention to 
become citizens, between the ages of 18 and 45, both inclusive, within the 
terms of the selective-service law. 

It is only necessary to change the ages, inasmuch as males under 21 may, 
under the laws of the United States, declare their intention to become citizens 
of the United States. 

2. The second amendment is as follows: 

“Provided , That the President may draft such persons liable to military 
service in such sequence of ages and at such time or times as he may prescribe.” 

This amendment should be incorporated for the purpose of enabling the 
President to call, for instance, persons between the ages of 32 and 40 or of 
the age of 20 before calling persons between the ages of 18 and 19 or between 
the ages of 40 and 45. 

The amendment makes it possible to call persons by classes as to ages. 

3. The third amendment strikes out the words “ in industries, including 
agriculture,” and substitutes therefor the words “ in occupations or employ¬ 
ments.” 

This amendment is made to the section of the act which provides for the 
deferred classification or temporary discharge of persons engaged in industries, 
including agriculture, found to be necessary to the maintenance of the Military 
Establishment or the effective operation of the military forces or the mainte¬ 
nance of national interest during the emergency. 

Experience has shown that some district boards are inclined to give a narrow 
construction to the word “ industries,” and it is thought that the words “ occu¬ 
pations or employments ” should be substituted for “ industries, including agri¬ 
culture,” not only for the purpose of preventing the difficulties arising by reason 
of the narrow construction placed upon the word “ industries ” but also for the 
purpose of enabling a somewhat broader construction of the law in view of the 
fact that the military age is to be increased and a wider latitude should there¬ 
fore be given to district boards to give deferred classification to persons whose 
occupations or employments may be found necessary to the maintenance of the 
national interest. 

4. The fourth amendment is as follows: 

“ Provided, That nothing in this section contained shall prevent the President, 
if he deems it advisable, from appointing as a member of a local board any per¬ 
son residing outside the subdivision or area in which such local board has juris¬ 
diction, or from transferring a member of one local board to another local board 
outside the subdivision or area in which such person resides.” 

This amendment is advisable for the reason that the selective-service act pre¬ 
vents the President from appointing as a member of a local board any person 
who resides outside the jurisdiction of that board. It has been almost impossible 
in some districts to find three qualified persons resident in the district to serve 
as members of the local board. This amendment will remove that difficulty 
and will also enable a member to be transferred from one local board to another 
local board in the interest of good administration of the draft law. 

5. The next amendment that needs any explanation is as follows: 

“ Provided further, That the President may, at such intervals as he may desire, 
from time to time require all male persons who have attained the age of 18 
years since the last preceding date of registration and on or before the next date 
set for registration by proclamation by the President, except such persons as are 
exempt from registration hereunder, to register in the same manner and subject 
to the same requirements and liabilities as those previously registered under 
the terms hereof.” 

This amendment is necessary in order to provide for the continued registration 
of boys as they reach 18 years of age. The selective-service act does not provide 
for the registration of persons as they reach 21 years of age, and therefore this 
amendment is necessary. 

E. H. Crowder, 
Provost Marshal General. 


CHANGES OF DRAFT AGE. 


13 


Forecast of the status of - the draft on Aug. 1, 1918. 

[From Provost Marshal General, July 1.] 

Total men registered in first registration June 5, 1917_ 9, 586, 508 

First deduction 2 (June 5 to Dec. 15, 1917)_ 863,195 

Men required to file questionnaires Dec. 15, 1917_ 8, 723, 313 

Second deduction 2 (deferred classification)_ 6,322,912 

Men classified in Class I Dec. 15, 1917_ 2, 400,401 

Third deduction 2 (Dec. 15, 1917, to May 1, 1918)_ 1,055,903 

Men of Class I available for full service on May 1, 1918_ 1, 344,498 

Fourth deduction 2 (May 1 to Aug. 1, 1918)_ 1 2 3 1, 253,613 


Balance of Class I full-service men of first registration who will be 
left on Aug. 1, 1918_ 1 90, 885 


Probable additions to Class I full-service men: 

Estimated additions from rectification of classification_ 1 125, 000 

Porto Rico (not included in above figures)_ 1 15, 000 

Estimated full-service men of Class I to be obtained from 
second registration, June 5, 1918_ 13 350, 000 

Total additions___ 1 490, 000 

Total Class I full-service men available on Aug. 1, 1918_ 1 580, 885 

Details of deductions from total men registered in the draft. 

First deduction (June 5, 1917, to Dec. 15, 1917) draft calls_ 516. 363 

Cancellation of registrations on account of errors, deaths, deser¬ 
tions, and enlistments in the Army, Navy, and Marine Corps not 
officially reported to local boards_ 346, 832 

Total first deduction_.— 863,195 


Second deduction (deferred classifications) — 

Class II- 

Class III_ 

Class IV—- 

Class V____ 


1 509, 666 
1 427, 870 
1 3, 483, 326 
1 1, 902, 050 


Total second deduction- 6, 322, 912 


Third deduction (Dec. 15, 1917. to May 1, 1918) — 

Draft calls- 413, 928 

Delinquents- 341, 096 

Emergency Fleet employees-,- 37,509 

Limited-service men- 224, 855 

Remediable defectives- 38, 515 


Total third deduction 


1, 055, 903 


Fourth deduction (May 1 to Aug. 1, 1918) — 

Draft calls-- - — 

Individual inductions of full-service men- 

Replacements of men rejected at camps- 

Deaths- : --- 

Emergency Fleet employees (additional)--- 

Releases granted for enlistments in Navy and Marine Corps— 


1, 053, 613 
1 5. 000 
1 60, 000 
1 2, 500 
1 7, 500 
1 125, 000 


Total fourth deduction 


1, 253, 613 


Total deductions 


1 9, 495, 623 


1 Estimated figures. 

2 For details see following table. 

3 Allowance is made for an estimated deduction of o0,000 men on 
in the Navy and Marine Corps. 


account of enlistments 


























































14 


CHANGES OF DRAFT AGE. 


The action of the committee in reporting the bill herewith is based 
upon the necessities of the Government in this crisis, and its enact¬ 
ment seems essential to-the carrying out of the enlarged military pro¬ 
gram proposed by this Government in order to enable the United 
States to play its proper part in the pending struggle and to hasten 
the end of the pending struggle. 

Objection has been made by some, though that objection is not by 
any means unanimously concurred in, that young men below the age 
of 21 ought not to be called into active service. Under ordinary 
conditions there would be force in the objection, but it must be re¬ 
membered that in this war, where it may with propriety be said that 
civilization itself is at stake, sacrifices in blood and treasure are 
necessary to be made if the allies are to win the war, and the serious 
question with the committee has been whether the life, social and 
industrial, of America will be disturbed less by calling out the 
younger men than by calling out those who are within the deferred 
classes because of dependency and other reasons which it is unneces¬ 
sary to state, but which are well understood throughout the country. 

The opinion of the Secretary of War, the Chief of Staff, and the 
Provost Marshal General, together with the necessities of the coun¬ 
try, have led the committee to believe that it is better for the suc¬ 
cessful prosecution of the war to call out those between 18 and 21 
and those above 31 and up to and inclusive of those of 45 who are 
eligible for service than to invade those classes which have been 
deferred by law and by regulations of the War Department. 

One of the amendments proposed by the committee to section 2 of 
the bill provides that when any person shall have been placed in a 
deferred or exempted class for any of the reasons therein set forth 
he shall not be entitled to remain therein unless he shall in good 
faith continue, while physically able so to do, to work at and follow 
such employment, and if he fails so to do he shall again become 
subject to the draft. The President is vested with authority to 
enforce this provision. 

It seems to the committee that in view of the fact we are about 
to authorize the drafting of the boys between the ages of 18 and 21 
years of age, as well as those above 21 up to and inclusive of 45 years 
of age, and are providing for the exemption of men between 18 and 
45 who are engaged in useful and necessary occupations from actual 
service in the ranks that when any are exempted solely because their 
services are more valuable to the Nation in the production of things 
essential to the prosecution of the war, that when they cease in good 
faith to follow the essential occupation they ought to be subject to 
the draft as in other cases. The young man not engaged in these 
occupations must wear the uniform, enter the ranks, and bare his 
breast to the weapons of the German army. He can not refuse to 
work even for an hour, and he is compelled to fight whether he feels 
disposed to do so or not. In view of this, when a young man is 
exempted from the draft solely in order that he may engage in 
essential industry he ought to continue in that employment m good 
faith while any grievance he may have is being adjusted by the 
industrial board, and if he fails to do so he ought to be placed in 
the same category and be subject to draft just as the young man is 
compelled to do who was not exempted to work in such industry 


CHANGES OF DRAFT AGE. 


15 


and who has been compelled to go to the battle front to fight for 
his country. The provision does not pretend to interfere with the 
right of any man to cease labor whenever it pleases him to do so, 
but simply says to him that if he does cease he shall, under such 
regulations as the President may prescribe, subject himself to the 
draft as though he had not been exempted in the first instance. 

The justice of this provision, the committee believes, will appeal 
to the good sense and patriotism of the whole country. 

The committee have suggested one or two other amendments to 
the bill, one of which provides that the wife of a soldier or sailor 
serving in the present war shall not be disqualified for any position 
under the Government because she is a married woman. Another is 
that soldiers and sailors, regardless of age, shall be eligible to receive 
commissions, either in the Army or Navy, and to admission to 
officers’ schools under proper rules and regulations, removing any 
disqualification on account of age, and another amendment provid¬ 
ing in certain contingencies for the education of young men at the 
expense of the Government after the conclusion of the present war. 

The reasons for these amendments are suggested by the mere 
statement of them. 

As amended, the committee recommend that the bill be enacted 
as speedily as is consistent with its proper consideration. 


o 






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